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Report on Analysis of Five-Year Building 
Program of Board of Education 

Proposed Two and Three Year 
School Building Programs 

MinneapoOsCivic&Commerce Association 

COMMITTEE ON MUNICIPAL RESEARCH 




J 



CONTENTS 

Letter of Transmittal . . 1 

Summary Table 3-4 

Report on Analysis of Five Year Building Pro- 
gram of Board of Education 5 

Proposed Two and Three Year School Building 
Programs. . 18 



D« of D. 
MAR 1"} 1?'17 



Minneapolis Civic & Commerce Association 



February 21st, 1917. 
To the Honorable Board of Directors, 

Minneapolis Civic & Commerce Association. 

Gentlemen: The Committee on Municipal Research, at your direction, 
has analyzed in detail the Five Year Building Program of the Board of 
Education presented in the monograph "A Million a Year." The Committee 
reports that, in its opinion, the amount requested, $5,600,000, may be re- 
duced to $4,498,220, and that the smaller amount will still make adequate 
provision for the expansion of the school plant necessary to operate the 
schools during the next five years, according to the educational program 
adopted by the Board of Education, the correctness of which the Committee 
has accepted for the purpose of this analysis. Before completing its report 
the Committee submitted its preliminary findings to Dr. Spaulding and his 
criticisms and suggestions were carefully considered in preparing the final 
report. 

As the estimates of the Board of Education for the last part of the five 
year period are necessarily dependent on factors which cannot be definitely 
determined so far in advance, your Committee has, in addition to its 
analysis of the five year program, prepared estimates for a two and three 
year program. The estimates for two years amount to $2,472,975 and for 
three years $2,945,063. The purpose of preparing a three year program 
was to show how expenditures may be reduced after the present plant has 
been brought up to the standard of equipment proposed in "A Million a 
Year." 

Dr. Spaulding's recommendation for buildings and additions to be com- 
pleted before September 1st, 1918, (not yet adopted by the Board of 
Education) were taken as the basis of the proposed two year program. To 
this were added the amounts (based on the five year program) needed for 
new sites, additions to play-grounds and improvements needed to reduce fire 
risk and to bring present school buildings up to a proper standard of equip- 
ment. The estimates for the three year program are only slightly larger 
than for two years because they include, in addition to the two year program, 
merely the amounts necessary to provide for the normal increase in school 
population for the third year. 

The Committee on Municipal Research respectfully recommends that 
the Association express its approval of the five year building program of 
the Board of Education involving an expenditure estimated at $4,498,220. 
The Committee further suggests that the Association recommend the 
authorization of bonds amounting to $2,472,975 to provide funds for carry- 
ing out the plans for the first two years of the five year program. 



It is estimated that the expenditures of the third year will need to be 
$472,088 which will leave $1,553,157 to be provided during the last two 
years of the five year period to complete the building program. 

The following reports are herewith submitted: 

Analysis of Five Year Building Program of Board of Education. 
Proposed Two and Three Year School Building Programs. 

Respectfully submitted, 

(Signed) A. W. Selover 
Chairman 
Committee on Municipal Research. 



Committee on Municipal Research 
A. W. Selover, Chairman 



F. H. Bass. 
W. Y. Chute. 
Howard W. Commons. 
J, F. Conkhn. 
John Crosby. 
E. C. Gale. 
N. F. Hawley. 
David P. Jones. 
C. F. Keyes. 



J. R. Kingman. 
Cavour S. Langdon. 
A. A. McRae. 
J. C. Mulholland. 

C. J. Rockwood. 
A. R. Rogers, 

D. F. Simpson. 
F. B. Snyder. 
S. W. Wells. 



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Analysis of the Five Year building Program 
of the board of education 



The consideration by the Board of Education of a general school building 
program providing for the expansion of the pubUc schools for several 
years ahead is conceded to be a far-sighted policy. The Board has per- 
formed a valuable public service in presenting an analysis of the an- 
ticipated needs of the city's schools for the next five years and in ask- 
ing the citizens to discuss the needs of the city's school plant in its en- 
tirety. 

The program provides for making necessary permanent improvements to 
present buildings and grounds and for the erection of new buildings to 
care for the anticipated increase in school attendance during the next 
five years. An issue of thirty year bonds amounting to $600,000 is 
asked to be used for the purchase of school sites. A five million dollar 
issue of serial bonds for school buildings is requested, to be issued at 
the rate of $1,000,000 a year: "Provided that the maximum of such 
serial bonds issued and sold under this act shall not exceed one million 
dollars on January 1st, 1918; two million dollars on January 1st, 1919; 
three million dollars on January 1st, 1920; four million dollars on Jan- 
uary 1st, 1921; and five million dollars on January 1st, 1923." Under 
this program it would be possible to have the third million dollars issued 
on January 2nd, 1919. 

This program is evidently one part of a continuous building program. A 
second five-year program should be discussed and determined upon at 
least one year before the close of the first five-year period. In consider- 
ing the present proposals, it must be borne in mind that the peak of 
the load, in other words, the maximum number of pupils for whom pro- 
vision must be made, will not be reached until the fifth year. 

The Board of Education is asking of the state legislature an enabling act 
broad enough in its scope to permit the Board to plan ahead for a five 
year period. The responsibility for issuing the bonds will rest with the 
City Council. 

For the next two-year period, definite plans for the erection of new school 
buildings and additions to old buildings have been submitted to the 
Board of Education by the retiring superintendent of schools. The 
program for the last three years of the five-year period is not clearly 



defined and cannot be at present. It necessarily depends on three 
factors, the influence of which cannot be definitely determined now, 
(1) the actual increase in school enrolment, (2) the growth of different 
sections of the city, and (3) the educational policy to be adopted. 
Specific recommendations must await the actual conditions to be faced. 

The more progressive cities throughout the country are experimenting 
with systems whereby the capacity of the school plant is increased by 
permitting more than one class to use each class room and equipment. 
The college method of using class rooms is being adapted to the needs 
of primary and secondary schools. The use of each room both for 
longer periods each day and by a larger group of pupils, reduces the 
number of buildings required. On pages 17 to 26 of "A Million a Year," 
the various methods of increasing school capacity are discussed. The 
Minneapolis Board of Education has adopted for six elementary grade 
buildings the "shift system," whereby one room accommodates two 
classes. 

The five-year building program, as it relates to elementary schools, is based 
on the "seat per pupil" plan. The plans for the use of the present 
high schools provide for a 40% increase of the "seat per pupil" capacity 
by means of having different classes use the same rooms at different 
periods. The plans for new high schools are on the "seat per pupil"basis. 

The reasons given for abandoning the methods of increasing the capacity 
of elementary grade buildings are, (1) that it is a make-shift system 
which should not be used if the city can afford to provide school build- 
ings on the "seat per pupil" basis and (2) the objection of parents to 
upsetting regular home habits. It is too early to determine whether 
an objection on the score of poorer educational provision for children 
would be valid. The new buildings which Minneapolis is now build- 
ing are fully equipped so that they can be readily adapted to some form 
of the "shift system." The city must face the question of whether 
it will continue to experiment witli the new methods for increasing the 
use of buildings to find if they are desirable from the educational stand- 
point. 

The following analysis of the estimates of the Board of Education does not 
enter into the question of the correctness of the educational policies 
on which they are based. The policies have been worked out by spe- 
cialists on education and for the purposes of this analysis their judgment 
is accepted. The analysis concerns only the estimates of the funds need- 
ed to provide for the phyvsical plant to house the public schools on the 
"seat per pupil" basis. 

The Board of Education's estimates are considered in the order in which 
they are listed on Pages 73 and 74 of the monograph "A Million a 
Year." 



I. Elementary Schools 

1. Miscellaneous permanent improve- Board of 

, , 1 <• z' 1 Education Revised Estimated 

mentS for the removal of fire haz- Estimate Estimate Reduction 

ards $274,544 $243,044 $ 31,500 

Permanent improvements included under this estimate amounting to 
$101,417 are approved. 

A number of items included in this request are classified as general 
improvements and repairs by the accounting division of the Board of 
Education, e. g,, wire glass, boiler room windows, metal window 
frames, iron ash platforms in boiler rooms, improving present fire 
escapes, etc. Such items are replacements, and should be charged 
against current operating expenses. They amount to $15,627.27. 
The Board of Education has included these items in its bond pro- 
gram, as the changes are immediately needed to reduce fire hazards. 
The Board does not anticipate that there will be sufficient revenue 
from the ^ mill tax levied for repairs, to do this work at once. An 
additional J^ mill tax for repairs and improvements is being re- 
quested of the present legislature. These items are approved be- 
cause of the fire hazard. 

The average cost of $2,500 per school for installing automatic sprinkler 
equipment, was arrived at by averaging the estimate of four prom- 
inent sprinkler companies submitted for the following schools, — 
Thomas Lowry, Bremer, Lincoln, Motley and East High. The 
average for the four grade schools was found to be $1,989, and the 
average for the five schools, including the East High, was $2,195. 
On the Board of Education's working papers, an item of $500, 
"Extra Board Expense," was added to each average, making them 
$2,489, and $2,695. The figure $2,500 is used in the estimate in- 
cluded in "A Million a Year," Page 62. The business superinten- 
dent's explanation of this $500 "Extra Board Expense," was that 
he thought it included the cost of the meter and back pressure 
valves in the connection from street to property line. The bids 
included this item. It seems safe to reduce the estimate $31,500 
($500 each on 63 sprinkler systems). 

Board of 

2. Replacement of forty-nine third-story IS?" Sat leSoa 

class rooms on account of fire risk. $330,064 $303,064 $ 27,000 

This estimate provides for replacing the following third floor rooms, 
at a cost of $8,500 per room, — Douglas 4, Emerson 6, Holland 6, 
Horace Mann 4, Logan 6, Longfellow 4, Madison 2, Motley 4, 
Sheridan 7, Washington 6. 

If the "seat per pupil" basis is to stand, it will be necessary to replace 
all of the forty-nine third-story rooms. The adoption of the "shift 

7 



8 ELEMENTARY SCHOOLS 

system" now in use in the George Bancroft and other schools, would 
make it possible to provide in the same buildings for the children 
now cared for in third-story rooms. There would still be some expense 
in equipping these buildings with the special rooms necessary for 
the "shift system." The adoption of the "shift system" is an edu- 
cational question and this report makes no recommendation for 
reducing this item with the following exception. 

There is a duplication in this estimate. Four third-story rooms in the 
Longfellow are included in this list. The next item calls for replac- 
ing the Longfellow entirely. This duplication amounts to $27,000. 

Board of 

Education Revised Estimated 

Estimate Estimate Reduction 

3. Replacing the Longfellow and Whitney $204,000 $175,776 $28,224 

The Longfellow building (20 rooms) is to be replaced by a school of 
the Hiawatha type, which costs $6,736 per class room. It is esti- 
mated that the sixteen rooms in the proposed building will cost 
$107,776. Four rooms placed elsewhere at $8,500 a room will cost 
$34,000. This reduces the estimate for replacing the 20 Longfellow 
rooms by $28,224. 

The unit cost used in estimating the cost for replacing the Whitney, 
is $8,500 per class room or $34,000. No reduction. 

Board of 

4liirir,n^u^^^^...r^ « A...^ <« » ^«4- :..M««rx.T.> Education Revised Estimated 

. Miscellaneous permanent improve- Estimate Estimate Reduction 

ments not due to fire risk $255,940 $119,940 $136,000 

This estimate provides $24,440 for additional toilets, drinking fountains 
and interior painting of new buildings which have not yet been com- 
pletely decorated. These improvements are evidently needed. 

The sum of $61,500 is asked for providing and equipping special rooms 
such as teachers' rest rooms, rooms for manual training, etc. The 
detail on which this estimate is based is indefinite, but as many 
schools lack these rooms, this item is not questioned. 

The twenty swimming pools included at an estimated cost of $170,000 
are a desirable but expensive addition to the city's educational 
equipment. It does not seem wise to provide them until more 
pressing city needs have been cared for. Since the demand for 
swimming pools will grow in the next five years, it seems advisable 
to place pools in some of the new buildings erected, preferably the 
the new junior high schools. This would mean the construction 
of approximately four swimming pools at an estimated cost of 
$34,000. This reduces the estimate by $136,000. 



ELEMENTARY SCHOOLS 9 

Board of 

5-n/r:„__ii- .,« ^^^-^ ^^ ^^*. :«..»>^,r» Education Revised Estimated 

. Miscellaneous permanent improve- Estimate Estimate Reduction 

ments of school grounds $94,000 $90,000 $4,000 

This request includes rough estimates of improvements needed on all 
school grounds. The detailed estimates submitted by the business 
superintendent, total $91,000. The difference between $94,000 
requested and $91,000 for which detail is submitted is $3,000. 

Since these estimates were prepared, the business superintendent has 
obtained free for the West High grounds, about $1,000 worth of 
clean dirt filling from contractors and the City Engineering De- 
partment. More of such filling can undoubtedly be obtained without 

cost. Board of 

Education Revised Estimated 

Estimate Estimate Reduction 

6. Enlarging twenty-eight school grounds $316,511 $314,546 $1,965 

The working papers of the Board of Education show that it is proposed 
to enlarge 30 school grounds, instead of 28. The total estimate for 
the 30 additions, is $314,546, which is $1,965 less than the estimate 
in "A Million a Year," which is said to cover 28 school grounds. 
The following are the schools whose grounds are to be enlarged: 

Schools having less than 50 square feet per pupil — 

Madison $22,500 

Grant 6,300 

Harrison 16,050 

Washington 20,000 

Franklin 22,000 

Seward 16,200 

Webster 18,700 

Logan 9,300 

Lyndale 20,000 

Clay 5,700 

Jackson 9,700 

Peabody '. 3,800 

Holmes 5,000 

Horace Mann 22,000 

$197,250 
Schools having from 50 to 100 square feet per pupil — 

T. Lowry $6,400 

Holland 19,050 

Monroe 13,800 

Corcoran 2,050 

Simmons 2,500 



10 ELEMENTARY SCHOOLS 

<■ 

Clinton 6,081 

Sheridan 3,000 



$52,981 



Schools having more than 100 square feet per pupil, which are growing 
so fast that they will soon need additional space — 

Rosedale $7,500 

Lincoln 8,850 

Pillsbury 13,500 

R. Fulton 13,500 

Wm. Penn 6,400 

Minnehaha 7,500 



$57,250 



Completing 3 sites which have not permanent buildings, $7,065. 
Julia Ward Howe. 
Maria Sanford. 
Miles Standish. 

Total, — enlarging 30 school grounds, — $314,546. 

The Committee on Municipal Research, is in favor of enlarging school 
grounds, and approves the estimate of $314,546, as listed above. 
This reduces the estimate in "A Million a Year" by $1,965. 

The Horace Mann is now within one block and a half of the playground 
at Powderhorn Park, and the program of the Board of Park Com- 
missioners plans to place park playgrounds within one and one- 
half blocks of the Madison, Webster, Pillsbury, and Robert Fulton 
Schools. 

7. Thirty additional class-rooms at $8,500 
per room to make it possible to 
reduce as much as practical the Board of 

, /• , ... Education Revised Estimated 

number of classes enrolling more Estimate Estimate Reduction 

than forty pupils $255,000 $255,000 



The number of classes over 40 in November of the current year, 324; 
an increase of 90 over June, 1916, indicates that the estimate of 
thirty rooms to eliminate the "over forty" classes, is reasonable. 
If the city decides to extend the "shift system" now in use in six 
schools, these rooms can be provided for without additional build- 
ings. No reduction recommended. 



ELEMENTARY SCHOOLS 



11 



Board of 
Education 
Estimate 



Revised 
Estimate 



Estimated 
Reduction 



8. Provision for grade pupils now in 
excess of class rooms (1,000) and 
for estimated increase (6,000) — 
7,000 pupils at $235 each $1,645,000 $1,468,750 $176,250 

The estimate of "1,000" pupils in excess of classrooms in June 1916, 
was evidently found by adding one-half of the number of pupils 
on part time, 1,369, and one-half of the number under the shift 
system, 919. The resulting figure, 1,144, was probably reduced to 
"1,000" because all classes did not include 40 pupils. During the 
first semester of the current school year, there were 1,175 pupils 
on part-time (December, 1916) and 1,777 pupils being cared for 
under the "shift system" (November, 1916). On the basis of the 
June, 1916 figures, it is estimated that 40% of the "1,000" in excess 
of class room space, included pupils under the shift system, and 
60% on part-time. It is agreed that part-time in the Minneapolis 
school system should be abolished. Providing for 600 pupils (60% 
of the "1000") at $235 per pupil, will cost $141,000. 

If it is found possible to continue the use of the "shift system" i a the 
buildings where it is now in operation, it will not be necessary to 
make other provision for the remaining 400 of the "1000" pupils 
in excess of class room space, on the "seat per pupil" basis. As the 
Board of Education recommends the "Seat per pupil" basis, provi- 
sion for these 400 pupils at $235 each will cost $94,000. 

The estimate of an increase of 6,000 grade pupils in five years is con- 
sidered too high. The estimate of 6,000 is based on the assumption 
that the grade school population bears a fixed ratio of 12% to the 
city's population. 

The following figures show, by years, the relation of the "number of 
grade pupils admitted" to the city's population. 



Year 


TJ. S. Census 

Bureau Estimate 

of Population 

July 1 


PUPttS ADMITTED TO GRADES, 
1-8, INCLUSIVE 




Number 


Per Cent of 
Population 


1906-07 


261,770 


39,508 


15.09 


1907-08 


271,612 


39,807 


14.70 


1908-09 


281,454 


39,637 


14.08 


1909-10 


291,296 


39,125 


13.43 


1910-11 


303,490 


39,577 


13.04 


1911-12 


313,483 


39,625 


12.64 


1912-13 


323,476 


39,751 


12.28 


1913-14 


333,472 


40,394 


12.12 


1914-15 


343,466 


41,472 


12.08 


1915-16 


353,460 


41,732 


11.80 



12 



ELEMENTARY SCHOOLS 



"Pupils admitted" includes everyone who enters the schools. The 
"average number belonging" equals the number of pupils in attend- 
ance, plus the number of pupils absent, divided by the number of 
school days. It approximates more closely the actual number of 
pupils that the schools are called on to provide for. There is a 
considerable difference between the "number admitted" to the 
schools and the "average number belonging." In 1915-16, the 
"number admitted" to grades 1 to 8, was 41,732; the "average 
number belonging" was 36,661. The ratio of grade school popula- 
tion, using the "Average number belonging," to the estimated city 
population, has been about 10.5% for the last four years, as shown 
in the following table. This information is not obtainable for 
earlier years. 





U. S. Census 
Bureau Estimate 
of Population 
July 1 


AVERAGE NUMBER BELONGING 
TO GRADES 1-8, INCLUSIVE 


Year 


Number* 


Per Cent of 
Population 


1912-13 
1913-14 
1914-15 
1915-16 


323,476 
333,472 
343,466 
353,460 


34,100 
35,000 
36,500 
36,700 


10.54 
10.49 
10.62 
10.38 



* These numbers were obtained by subtracting the kindergarten figures from the total for the elementary 
grades. 

The United States Census Bureau estimates that the city's population 
increases at the rate of approximately 10,000 a year. This is borne 
out by the enumeration of the city directory. Using the 10^% 
ratio, it is estimated that the grade school population will each year 
be increased by approximately 1050 or 5250 pupils during the 
next five years. 

Using the estimate for the cost of grade buildings, $235 per pupil, the 
cost of providing for these 5250 pupils will be $1,233,750. The 
cost of caring for 6000 pupils, at $235 each, was estimated at $1,410,- 
000. The reduction of 750 in the estimate of the number of pupils, 
results in reducing the cost estimate, $176,250. 

9. Twenty-three new kindergarten rooms 
to make kindergartens accessible 



In 



Board of 
, . 1 • 1 ^n rf\f\ Education Revised Estimated 

to all Cnildren in the city at $8,500 Estimate Estimate Reduction 

per room $195,500 $110,500 $85,000 

a "Million a Year," it states (1) that in June 1916 there were 46 
kindergartens (2) that it would take 20 more to care for all kinder- 
garten children at present, 6 of which were to be provided in build- 



ELEMENTARY SCHOOLS 13 

ings under construction and (3) that the growth of population in 
the next five years would make nine kindergartens necessary. The 
total needed, 29, minus the 6 under construction left 23 which 
were included in the request. 

At present, January 1917, 63 schools have kindergartens, 7 permanent 
buildings have no kindergartens, 5 portable buildings have no 
kindergartens. In two of these, such as the Thomas Arnold it is 
not feasible to put in kindergartens. 

The twent3^-three kindergartens requested would provide three foi 
buildings now using bookrooms and an auditorium for kindergartens, 
ten to place kindergartens in all schools now without kindergartens 
where they can be placed advantageously and ten in buildings on 
new sites still to be purchased. 

The allowance of $110,500 (13 at $8500) for kindergartens seems suffi- 
cient, as part of this number will probably be placed in present 
buildings or portables at a cost considerably less than $8,500 each. 
Ten kindergartens on sites not now owned by the Board do not 
seem necessary. Elimination of ten kindergartens at $8,500 each 
reduces the estimate $85,000. 

PRESENT SCHOOLS WITHOUT KINDERGARTENS 
JANUARY, 1917 

Permanent School Buildings — 

Columbus Minnehaha 

Eugene Field Peabody 

Lafayette Pillsbury 

Thomas Arnold 

Portable School Buildings — 

Grover Cleveland Louis Agassiz 

Cyrus Northrup Julia Ward Howe 

Whitney 

Board of 
. . . Education Revised Estimated 

10. Nme new school sites in OUtljring, Estimate Estimate Reduction 

growing districts $105,200 $52,600 $52,600 

The nine grade school sites which the Board of Education proposes to 
purchase, are in outlying districts. The Board already has seven 
grade school sites on which permanent buildings have not been 
erected. The city can afford to pay a 25% increase in price for 
these sites five years hence, thus saving in taxes and interest on 
sites bought long before use. At the same time, it would not run 



14 ^ ELEMENTARY SCHOOLS 

the risk of securing locations which might be found unfit for school 
purposes when the time comes to build. 

It is estimated that half of the sum requested, or $52,600, together 
with the $80,000 for junior high school sites (see item 5 under 
High Schools) will be sufficient . to buy the sites which should be 
purchased during the next five years. 

The proposed reduction on this item amounts to $52,600. 



II. HIGH SCHOOLS, JUNIOR AND SENIOR 



Board of 
. ., ^. 1 m -wT i« 1 Education Revised Estimated 

1. Replacement of the Girls' Vocational Estimate Estimate Reduction 

High School on account of fire risk. $400,000 $400,000 

The Board of Education estimates an enrolment of from 1000 to 1200 
girls in the Vocational High School at the end of five years. (Enrol- 
ment June 1916, 350). To reach this estimate, the school will have 
to increase at the rate of over 25% per year. While this seems an 
optimistic estimate, there seems to be no doubt but that the school 
will grow rapidly, and, in building, it will be necessary to provide 
for the increase for several years ahead. 

The reasons for the enrolment being low at present are the lack of 
space (part of the present building is being used by the Dunwoody 
Institute), the fire risk and the general unattractiveness of the 
building. A new building will give a tremendous impetus to this 
phase of education, the importance of which is just beginning to 
be appreciated. 

2. Minor changes and additions to cer- 

tain departments of high schools as 

a means of increasing the normal Board of 

,,, ,., , 1 1 . Education Revised Estimated 

capacity of the high school plant Estimate Estimate Reduction 

by 40% $250,000 $221,000 $ 29,000 

An expenditure which will make possible increasing the normal capacity 
of buildings 40% is undoubtedly justifiable. 

This estimate includes $100,000 to be spent on the East High School, 
$75,000 on the Central High Shops and $46,000 for equipping the 
new addition at the West High. For the balance $29,000, no 
definite estimates were available. The estimate is reduced this 
amount, $29,000. 



HIGH SCHOOLS. JUNIOR AND SENIOR 



15 



Board of 
Education 
Estimate 



Revised 
Estimate 



Estimated 
Reduction 



$624,000 $156,000 



3. Provision for estimated increase in 
number of high school pupils in 
excess of increased normal capa- 
city of buildings — whether such 
provision be made in junior or 
senior high schools — 2,000 pupils, 

at $390 per pupil $780,000 

The Board of Education has estimated an increase of 5300 in high 
school attendance during the next five years, exclusive of the 
increase at the Girls' Vocational High School. The figure 5300 was 
obtained by estimating an 11% increase each year over the June 
1916 membership. The following tables show the "average number 
belonging" in the high schools for the past five years, and the 
annual enrolment for five years ahead, based on the 11% increase 
and on a 9% increase, the highest the city has yet seen. 

Increase in High School Attendance 
(Not including Girls' Vocational High School) 



Year 


Average Number 
Belonging 


Per Cent Increase 

Over Preceding 

Year 


1911-12 




5,881 




1912-13 




5,988 


1.8% 


1913-14 




6,417 


7.2% 


1914-15 




6,978 


8.7% 


1915-16 




7,599 


8.9% 



Estimated High School Increase 
For five years following 1915-16. 



Year 


On 11% Basis 


On 9% Basis 


1916-17 




8,435 


8,283 


1917-18 




9,363 


9,028 


1918-19 




10,393 


9,841 


1919-20 




11,536 


10,727 


1920-21 




12,805 


11,692 



The "average number belonging" for the first four months of 1916-17, 
was 8,158, an increase of 7.4% over 1915-16. The spring semester 
will increase this figure, but judging by past years it will not reach 
11%. 



16 HIGH. SCHOOLS. JUNIOR AND SENIOR 

The reason for the high estimate of the increase in high school attend- 
ance, is the fact that in cities where junior high schools have been 
established, it has resulted in many more pupils going through 
high school. A similar result is anticipated here. Any estimate 
of the number of pupils for five years ahead must be a guess. It is 
felt that 5300 additional high school students, is a high estimate, 
but there seems to be a fair chance of its fulfilment. 

The previous item provides for 2300 of this increase in present high 
schools. This leaves 2000 students to be cared for elsewhere. 

The "per pupil" cost used in high school estimates, is $390. This is 
based on the average of the total cost of the Central High School 
and of the North High School, divided in each case by the "seat 
per pupil" capacity. As all the older high schools are to have their 
capacity increased 40%, it seems unreasonable to assume that new 
high schools will not be planned to care for a larger number than 
the "seat per pupil" capacity. To estimate the cost of such build- 
ings, the "per pupil" cost of the two recently built high schools, is 
figured on the basis of a 25% increase over their "normal" capacity. 
This gives the unit cost of $312. (See Exhibit I, P.17.) Provision 
for 2000 students at $312 per pupil will cost $624,000. This reduces 
the Board of Education estimate by the difference between the 
estimate cost of $390 per pupil, and $312 per pupil, — or $156,000. 

Board of 

Education Revised Estimated 

Estimate Estimate Reduction 

4. A Northeast Junior-Senior High School $300,000 $300,000 

The Board of Education will probably find it necessary to erect such 

a high school in the not distant future. 
Item "8" under Elementary Schools provides for the entire estimated 
increase in the number of grade school pupils in the next five years 
and items "2" and "3" under High Schools, Junior and Senior, 
provide for the estimated increase in High School attendance. It 
seems reasonable to assume that the funds for this building are 
provided for under those requests. The estimates of increase in 
school population 5,250 for grades, exclusive of kindergarten 
pupils, and 5,300 for high schools, represent a higher rate of increase 
than the city has yet seen. It does not seem necessary to provide 
funds for an additional 1000 by granting this request. 

Board of 

Education Revised Estimated 

Estimate Estimate Reduction 

5. Four Junior High School Sites $80,000 $80,000 

If the proposed junior high school plan of organization is adopted by 

the Board of Education, these sites will be needed. It might be 
possible to locate some of these schools on sites where there are 
other schools which have sufficient extra ground. 



HIGH SCHOOLS. JUNIOR AND SENIOR 



17 



6. 



7. 



If the junior high school plan is not adopted, it is probable that the 
Board will need sites for either high school or elementary schools 
in addition to the seven which the city now owns. If $80,000 is 
allowed, its purchasing power will be greater for elementary school 
sites. 



A playground for the Central High and Board of 

, , , , , ,, Education 

enlargement of the grounds of the Estimate 

West High $40,000 

This expenditure seems desirable. 

Board of 
Education 
Estimate 



Revised 
Estimate 

$40,000 



Revised 
Estimate 



A School Stadium at West High $75,000 

The need of a school stadium is debatable. It is a question 
this is not a Park Board function. It seems wise for the 
Education to care for pressing educational needs before 
recreational needs. 



Estimated 
Reduction 



Estimated 
Reduction 

$75,000 

whether 

Board of 

meeting" 



EXHIBIT 1 
Unit Costs of High School Buildings. 





Seat Per Pupil 

Cost of 
Building 


Seat Per Pupil 
"Normal 
Capacity" 


40% Increase 

Over Normal 

Capacity 


26% Increase 
Capacity 




Number 


Cost Per 
Pupil 


Number 


Cost Per 
Pupil 


Number 


Cost Per 
Pupil 


Central 


$713,094.58 
569,968.74 


1,600 
1,705 


$446 
334 


2,240 

2,387 


$318 
238 


2,000 
2,131 


$357 


North High 


267 


Average 

Unit Cost 






$390 




$278 




$312 









The average number belonging at the Central High School during the 
first four months of 1916-17, was 2,182, 36% above the "normal 
capacity" on the "seat per pupil" basis. 



Proposed Two and Three year school buh^ding 
Programs Based on Five Year Building Pro- 
gram OF BOARD OF Education and Rec- 
ommendations OF DR. Spaulding 



The submission to the Board of Education by Dr. Spaulding of recommen- 
dations on school buildings and additions which should be completed 
by September 1st, 1918, suggests that bond issues covering a shorter 
period than five years may be authorized. With this possibility in 
mind, the following two and three year programs have been prepared 
based on Dr. Spaulding's two year program and the recommendations 
contained in "A Million a Year." 

For the purposes of this study the following assumptions are made in 
considering two and three year programs: 

1. That the educational policies outlined in "A Million a Year" 
are sound. 

2. That the two year program recommended by Dr. Spaulding 
January 25th, 1917, will be accepted by the Board of Education. 

3. That Dr. Spaulding's recommendations of January 25, 1917, 
were intended to cover only buildings and additions needed 
before September 1st, 1918, and did not include improvements 
to present buildings and additional school grounds which "A 
Million a Year" states are necessary immediately. 

4. That the two year period covers the calendar years, 1917 
and 1918, and that the three year period covers the calendar 
years 1917, 1918 and 1919. , 

The accompanying table summarizes the proposed two and three year 
program listing each item given on pages 72 and 73 of "A Million a 
Year." The explanation for the estimates contained in the table 
follow. 

I. Elementary Schools 

1. Miscellaneous permanent improve- Revised Proposed Proposed 

- ,, , , - , Five-Year Two- Year Three-Year 

mentS for the removal of fire haZ- Estimate Program Program 

ards $243,044 $243,044 $243,044 

There is no part of the building program that is more imperative and 
worthy of immediate attention. It is therefore suggested that this 
estimate be included in a two or three year program. 



ELEMENTARY SCHOOLS 19 

2. Replacement of forty-nine third-story 

class rooms on account of fire risk. 
As the program outlined for two years by Dr. Spaulding does not 
group new rooms by special purpose as given in "A Million a Year," 
this item is considered with No. 8. 

Revised Proposed Proposed 

„ _ , . _ , ,, , __ .^ Five-Year Two-Year Three- Year 

3. Replacing Longfellow and Wnitney Estimate Program Program 

schools $175,776 $164,778 $164,778 

Plans are on file in the school architect's office showing the following: 

Rooms Kindergarten Cost 

Longfellow School 16 1 $95,778 

Whitney School 9 1 69,000 



Total 25 2 $164,778 

For these two buildings the original five year program allowed $204,000 
for a total of 24 rooms plus one kindergarten. The large difference 
in cost is due to the cheaper one-story type of building now planned 
for these two schools. These buildings as planned, cover the space 
requested in "A Million a Year." No alteration of the estimate 
in the new program is suggested. 

4. Miscellaneous permanent improve- Revised Proposed Proposed 

,,.,,. , , , - Five-Year Two-Year Three- Year 

mentS of buildings not due to fire Estimate Program Program 

risks $119,940 $34,376 $51,564 

This item is made up of the following: 

Additional toilets, drinking fountains, etc $ 24,440 

Special rooms, not now provided 61,500 

Twenty swimming pools 170,000 



$255,940 



The analysis of the five year program approved the first two items, and 
recommended four swimming pools. 

It is assumed that installing the permanent improvements listed under 
the first two items, was to cover the five year period. For two of 
the five years, two-fifths of the total estimates, $85,940 is included. 
This amounts to $34,376. For a three year program, the amount 
will be three-fifths or $51,564. 

Three swimming pools are included in the architect's plans for the 
three junior high schools recommended by Dr. Spaulding. The 
entire cost of these buildings is included under "II, High Schools, 
Junior-Senior" — Item 2, 3 and 4. 

Installation of the fourth swimming pool, recommended, can be post- 
poned until the latter part of the five year period. 



20 ELEMENTARY SCHOOLS 

Revised Proposed Proposed 

Five-Year Two-Year Three-Year 

6. Miscellaneous permanent improve- Estimate Program Program 

ments of school grounds $90,000 $36,000 $54,000 

No provision is made in Dr. Spaulding's two year program for this 
item. Dividing it evenly over the five years gives $36,000 for the 
share of the first two years and $54,000 for the first three years. 

Revised Proposed Proposed 

Five-Year Two-Year Three-Year 

Estimate Program Program 

6. Enlarging twenty-eight school grounds. $314,546 $314,546 $314,546 

The five year program includes $316,511, (Revised figure— $314,546) 
for enlarging twenty-eight school play-grounds. All of this item, 
if included at all, should be provided for at once before the price of 
land for the proposed extensions increases. 

7. Thirty additional class rooms, at $8,500 

per room, to make it possible to 
reduce as much as practical, the 
number of classes enrolling more 
than forty pupils. 

This item is covered in the discussion of item No. 8. 



Revised 


Proposed 


Proposed 


Five-Year 


Two-Year 


Three-Year 


Estimate 


Program 


Program 



8. Provision for class room space $2,137,314 $1,068,854 $1,417,354 

Four items of the Five Year Program are included under this head. 

No. 2. Replacing 49 third story class rooms estimated at $330,064. 
Revised estimate of number of rooms needed — 45. 

No. 7. Provision for reducing the number of classes of over 
forty — 30 rooms estimated at $255,000. 

No. 8. Provision for pupils in excess of class room space and for 
normal increase in grades — 195 rooms estimated to be needed, 
to cost $1,645,000. Revised estimate of number of rooms 
needed — 174, 

No. 9. Provision for 23 kindergartens to cost $195,500. Revised 
estimate of number of kindergartens needed — 12, (one other 
was provided for at the Whitney under item No. 3 above). 

Total number of rooms estimated to be needed — 297 at a cost of 
$2,425,564. Revised estimate of number of rooms needed — 261. 

Some of these class rooms should be provided at once, e. g. the 30 
rooms for reducing the number of classes of over forty and the 



ELEMENTARY SCHOOLS 21 

28 class rooms included in item No. 8 for pupils in excess of class 
room space. The 203 additional rooms which make up the 261 
rooms needed are for expansion, and cover a five year period. 
They should be installed at the rate of one-fifth per year, or 82 
rooms during the two year period covered in this program. 

Summarized these are — 

For elimination of classes of over forty 30 rooms 

For pupils without class rooms now 28 rooms 

For growth of schools during two years (two fifths 

of 203) 82 rooms 

Total 140 rooms 

Dr. Spaulding's proposed two year program provides 128 rooms as 
follows : 

Three new junior high schools with a normal capacity of about 
1000 each, and a maximum capacity of 1500 each or 4500 
pupils in all. Only two-thirds of these buildings will be used 
for grade pupils, however, as the other third will be for high 
school pupils. At forty pupils per room this means for grade 
pupils — 75 rooms to cost $652,354 (architect's estimate.) 

New Maria Sanford, 11 rooms to cost $93,500, ($8,500 per room). 

Additions to McKinley, Clara Barton, Hiawatha, and Johnson, 
26 rooms, to cost $221,000, ($8,500 per room). 

Provision for grade pupils in junior high department at West 
and South High Schools — 16 rooms (estimate). 

Total 128 rooms to cost $966,854. 

Dr. Spaulding's program gives 12 rooms too few to provide for the 
estimated expansion during the next two years. At $8,500 a room 
the additional 12 rooms would add $102,000 to his estimates for 
the two year program. 

For a three year program, the addition of one-fifth of the 203 rooms 
provided for growth, to the revised two year program is needed. 
This is 41 rooms, which at $8,500 will cost $348,500. 

9. Provision for kindergartens — Included 

under Item No. 8. 

Revised Proposed Proposed 

Five-Year Two-Year Three-Year 

Estimate Program Program 

10. New grade school sites $52,600 $52,600 $52,600 

While there is some difference of opinion as to the advisability of buy- 
ing sites so many years in advance of their use, if they are to be 
purchased, it should be done at once. The revised estimate for this 
purpose is therefore included in the two and three yearjprograms. 



n. High schools— Junior and Senior 



Revised Proposed Proposed 

Five-Year Two-Year Three-Year 

Estimate Program Program 



1. New Girls' Vocational High School. . . . $400,000 



While this item of $400,000 is approved, Dr. Spaulding does not recom- 
mend that the building be started within two years. 

Revised Proposed Proposed 

n n J A -Tk • • j; tt- t. oi i. i Five-Year Two-Year Three-Year 

2, 3 and 4. Provisions for High School Estimate program Program 
pupil increase $845,000 $458,777 $547,177 

These three items will be discussed together, as they all pertain to the 
one subject of providing for the increase in high school enrolment 
expected during the next few years. The five year program pro- 
vides for the following: 

(a) Expenditures on present high school plant to increase 

its capacity $ 250,000 

(b) Provisions for excess enrolment over increased build- 
ing capacity 780,000 

(c) A Northeast Junior - Senior High School 300,000 

Total for five years $1,330,000 

This total of $1,330,000 will provide for an estimated increase during 
the next five years, of 5,300 high school pupils. As this estimate 
was made on June 1916 figures, and the five year program, includes 
the school year 1921-22, it follows that the two-year program now 
outlined, must provide for three yearly increases (the increase last 
fall and the next two years' increases) which means 2,650 pupils, 
and a three year program will mean 3,530 pupils. 

Dr. Spaulding in outlining his two year plans, does not definitely refer 
to provision for high school increase, save the small part that the 
new junior high schools will care for. It is evident that full use of 
the present high school plant was contemplated as providing the 
place for growth. To allow this full usage will mean some expense 
for alterations to the buildings, for which $250,000 was requested 
in the five year program. In the study of this item it is recom- 
mended that $29,000 be eliminated, as no definite plans for its use 
were available. The remaining $221,000 will fit up the majority 
of the present high schools for 40% overload use. Dr. Spaulding's 
two year outline calls for three junior high schools, — each to care 
for a normal capacity of 1000 pupils — maximum 1500 pupils — 
and each to cost $326,177 (architect's estimate). Since one-third 



HIGH SCHOOLS— JUNIOR AND SENIOR 23 

of the high school will be used by ninth grade pupils, it is equivalent 
to setting aside one whole building — ($326,177) for high school 
growth. 

Two Year Program 

Estimated pupils to be cared for — 2650 pupils. 
Provisions made — 

(a) New Junior high schools. . 1500 pupils 

(b) Spending 60% of the $221,000 for increasing the 

capacity of the present plants, (such as re- 
modeling three out of five schools), will cost 
$132,600 and care for 1865 pupils 

(c) Deduct for grade pupils to be transferred to 

South and West High Schools 720 pupils 

Net 2645 pupils 

Addition to Dr. Spaulding's estimate for high schools under Two 
Year Program— $132,600. 

Three Year Program 

Estimated pupils to be cared for 3530 pupils 

Provisions made — 

(a) New Junior High Schools 1500 pupils 

(b) Spending entire $221,000 on increasing school 

capacity 3110 pupils 

(c) Deduct for grade pupils to be transferred to 

South and West High Schools 720 pupils 

Net 3890 pupils 

Addition to Dr. Spaulding's estimate for high schools under three 
year program— $22 1 ,000 . 

Revised Proposed Proposed 

Five-Year Two-Year Three-Yeai 

Estimate Program Program 

5. New Junior High School Sites $80,000 $60,000 $60,000 

Four of these are requested in the five year program, and three are 
provided for in Dr. Spaulding's two year plan. 



24 HIGH SCHOOLS— JUNIOR AND SENIOR 

Revised Proposed Proposed 

6. Playgrounds for the Central and West Estimate Program Program 

High Schools $40,000 $40,000 $40,000 

Both of these are approved. If these grounds are to be purchased 
at all they should be purchased at once. 

Revised Proposed Proposed 

Five-Year Two-Year Three-Year 

Estimate Program Program 

7r Stadium at West High 

This item is completely eliminted. 

TOTAL FOR HIGH SCHOOLS. $1,365,000 $ 558,777 $ 647,177 

TOTAL FOR ELEMENTARY 

SCHOOLS 3,133,220 1,914,198 2,297,886 

GRAND TOTAL FOR ALL 
SCHOOLS, HIGH SCHOOL 
AND ELEMENTARY $4,498,220 $2,472,975 $2,945,063 



LIBRARY OF CONGRESS 



029 452 244 A 



